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Bergen Light Rail – Effects on Travel Behaviour

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Bergen Light Rail – Effects on Travel Behaviour Bergen Light Rail – effects on travel behaviour Øystein Engebretsen ([email protected]), Petter Christiansen ([email protected]), Arvid Strand ([email protected]) Institute of Transport Economics, Norway The final publication is available in: Journal of Transport Geography 62 2017 111-121 10.1016/j.jtrangeo.2017.05.013 Abstract Bergen is the second most populous city in Norway (280,000 inhabitants) and is situated along the west coast of the country. In 2010, the city reintroduced tram service with the opening of a new light rail line, after a gap of 45 years. This study documents the increase in public transit use in Bergen, both in terms of volume and market share, since the line was opened. Furthermore, it explores the effects of light rail transit on travel behaviour using Bergen as a case city. These goals are accomplished by combining and analysing data from different sources, including five travel surveys, and other data concerning building stock, population, business activity, commuting and traffic counts. The study identifies four potential driving forces for changes in travel behaviour: (1) the introduction of the light rail; (2) a new high-frequency bus network; (3) increased rates in the toll cordon system; and (4) changes in the urban structure. The study concluded that the introduction of light rail was the main driving force behind the growth in public transit use. The study also highlighted that transit use was highest in areas served by the light rail. The effects of the light rail investments are reinforced by an optimal location of the line with respect to potential users. Keywords: light rail, travel behaviour, travel survey, register data 1 Introduction 1.1 Modern light rail systems Modern tram or light rail systems have become attractive options for improving urban public transport. By light rail or light rail transit (LRT), we mean an urban form of public transport often using rolling stock similar to a tramway, but operating primarily along exclusive rights-of-way (Transportation Research Board 2000). A number of cities and regions have planned, built or extended light rail systems over the past two decades (Hanssen et al. 2005, UITP 2009). Between 1985 and 2000, LRT systems were introduced in 42 cities around the world, and in another 78 since 2000. In 2015, 850 km of track infrastructure were under construction and another 2,350 km were in the planning stage (UITP 2015). Usage of existing light rail systems are increasing and the networks are extended (Department of Transport 2016). It has been shown that LRT increases the use of public transport, influences urban land-use, promotes economic growth and increases the status of a region or city (Knowles 1992, Knowles and Ferbrache 2014). Bergen Light Rail – effects on travel behaviour 1 1.2 The Norwegian challenge The Government has adopted a so-called “zero-growth objective”, which seeks to meet expected increases in transportation demand in Norwegian cities without increasing passenger car traffic (Ministry of Transport and Communication 2013). A main strategy for achieving this is to steer the development of land-use and transport systems to reduce transport demands and to shifts in modal split towards less car-usage (Ministry of Local Government and Modernisation 2014). With emissions reduction and social and economic sustainability in cities as priorities, Norwegian municipalities and regional authorities have implemented a wide range of policies and measures, such as congestion pricing, restrictive parking policies, high-density land-use development, and investments in public transport infrastructure. Several Norwegian cities have been reviewing the possibilities for light rail, but Bergen is the only one in which a completely new system has been introduced (there are older systems operating in Oslo and Trondheim1). This paper focuses on the impacts of Bergen Light Rail on travel behaviour. The paper supports previous studies showing growth in public transit use following the introduction of light rail. The most important contribution to existing literature is the documentation of greater effects of a new light rail line as compared with a modernized bus network and increased road tolls, on the use of public transport. The significance of light rail services affects mode of transport regardless of urban structure and the possibility of car use. 1.3 Bergen Light Rail – reintroduction of the tram Bergen is located on the west coast of Norway and is the second most populous city in the country. In 2017, the number of inhabitants in the municipality of Bergen is almost 280,000 (Statistics Norway 2017). Over the last twenty years, the municipal population has grown by about 24 percent – it is expected to grow by another 16 percent over the next twenty years (Statistics Norway 2016). The original tram system in Bergen was an integral part of the city’s public transport system from 1897 until 1965 when politicians decided to abandon the tram network and invest in large road infrastructure projects. Consequently, there was a significant increase in road capacity. In 1986 Europe’s first toll road system for accessing the city centre was introduced to finance further investments in road infrastructure. By the 1990s, the region had experienced rapid growth in car ownership and use (Fosli and Lian 1999). Improved infrastructure shortened travel time and improved accessibility for cars. In both absolute and relative terms, car users were the main beneficiaries (ibid.). Investments and subsidies in public transport were 1 Oslo (the largest city and capital) has both a relatively extensive metro network and an extensive tram network (partly with light rail standard). Both networks are being expanded. Trondheim (third largest city) has retained one tramline with primarily light rail standard. In more than five other cities in Norway, light rail is under discussion. Bergen Light Rail – effects on travel behaviour 2 not a priority during this time – as public transport fares increased in order to maintain service, the numbers of passenger fell. During the 1980s, land-use development in Bergen was characterized by urban sprawl. Both housing and workplaces were moving to the outskirts of the municipality, while the inner city experienced a rapid decline. However, in the 1990s, Bergen experienced a period of re-urbanisation with new housing being developed in the central parts of the city (ibid.). Furthermore, it was during the 1990s that it became evident that Bergen was facing major challenges related to accessibility, congestion and environmental pollution (Norwegian Environmental Agency 2014). It was in this context that initial suggestions for building a light rail system emerged. In the year 2000, the City Council decided to build a new public transport system, with light rail constituting its backbone. Parliament approved the necessary funding support for construction in 2006. The first section, between the city centre and Nesttun, opened in spring 2010 (Figure 1). Section 2, between Nesttun and Lagunen, was finished in June 2013. Section 3 was opened in two stages – August 2016 and April 2017. The light rail now operates along a 20 km stretch between the city centre and the regional airport. It has been decided to expand the light rail system with a new line from the city centre towards Fyllingsdalen in the south-west. Construction is scheduled to commence in 2018 and conclude in 2022 (Bergen Program for Transportation, Urban Development and the Environment 2017). The project will receive 50 percent funding from the national government (Ministry of Transport and Communications 2017). An extension of the existing line towards Åsane in the north is also planned. 1.4 Driving forces – research questions Though we are primarily interested in studying the effects of light rail, other initiatives in the city need to be considered as well in order to successfully map out changes in travel behaviour. In 2010 and 2011, Bergen introduced a new high- frequency bus network serving parts of the city not covered by light rail. Various studies have shown the effect of reducing service intervals, measured with both elasticities (Balcombe et al. 2004, Norheim and Ruud 2007) and value of time savings (Samstad et al. 2010). Balcombe et al. (2004) found a short run elasticity of bus demand of 0.38, rising to 0.66 in the long run. For Norway, a short run elasticity of bus demand of 0.42 (Ruud et al. 2005, Norheim and Ruud 2007) has been estimated. It is thus likely that Bergen’s new bus network, with more frequent departures, has made public transport more attractive. Restrictive measures aimed at car traffic can also have a significant impact on travel behaviour (Fridstrøm and Alfsen 2014). In 1986, Bergen introduced a toll cordon system, which has since been expanded several times. An important factor influencing our line of enquiry is the increase in toll charge from NOK 15 to NOK 25 in 2012. The city centre was made inaccessible by car without paying this toll amount. Furthermore, the municipality has restricted parking in the city centre. Studies undertaken in Norwegian cities show that parking restrictions Bergen Light Rail – effects on travel behaviour 3 significantly affect car use, particularly in dense city-centre areas (Christiansen et al. 2017). This may enhance the effect of a high standard public transport system. Consequently, in our analyses we considered these three potential driving forces, and framed the research question as following: Have there been any changes in travel behaviour in Bergen linked to the introduction of light rail, and is it possible to separate this effect from the impacts of the new bus system, increased toll rates and more restrictive parking regulations? The tolls can be assumed to have a uniform effect throughout the city for travelling to and from the central areas. The same most likely applies to impacts of parking regulations since restricted parking zones extend from the city-centre with approximately the same distance in all directions.
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